Public Works Commission ACTION CALENDAR July 14, 2009 To: From: Honorable Mayor and Members of the City Council Public Works Commission Submitted by: Jeffrey Egeberg, Secretary, Public Works Commission Subject: Street Repair Policy Update and Permeable Paver Trial Project RECOMMENDATION Adopt a Resolution accepting the update of the City s Street Repair Policy, including the Five-Year Street Paving Plan for FY 2010-2014. Approve the allocation of up to 15% discretionary funding in FY 2010 for a trial installation of permeable paving materials that help attain the goals of the Climate Action Plan by addressing multiple demands on City s street and sidewalk infrastructure that are environmentally sustainable, economically efficient, and effective in the long term. FISCAL IMPACTS OF RECOMMENDATION The attached Five-Year Street Paving Plan is based on planned 5-year funding levels as follows: FY 2010 $2,737,486 FY 2011 $2,793,334 FY 2012 $2,801,892 FY 2013 $2,818,599 FY 2014 $2,835,807 The above local street paving program is funded from the General Fund, Measure B, and State gas taxes. Due to the current economic climate, these funding levels cannot be assured and may change at almost anytime time during the upcoming fiscal years. In addition to the local program, funding has been tentatively secured at both the state and federal levels as follows: Federal ARRA Tier 1: $1,619,000 ARRA Tier 2: $ 312,000 State Prop 1B Round 1: $1,732,000 Prop 1B Round 2: $1,600,000 All of the above federal and state funding is currently being applied to the rehabilitation of University Avenue. 2180 Milvia Street, Berkeley, CA 94704 Tel: (510) 981-7000 TDD: (510) 981-6903 Fax: (510) 981-7099 E-Mail: manager@ci.berkeley.ca.us Website: http://www.ci.berkeley.ca.us/manager
Update of the Street Repair Policy and Permeable Paver Trial Project CONSENT CALENDAR July 14, 2009 CURRENT SITUATION AND ITS EFFECTS Various streets throughout the City are in deteriorated condition. Due to the current budget crisis, associated decreases in levels of funding, and increase in material costs, the rehabilitation of many streets has already been deferred to later years. Most recently, the entire FY 2009 local paving program was deferred to FY 2010. As a result, the enclosed 5-Year Paving Plan (Attachment 3) is the same as that published last year. The Street Repair Policy statement contained in Attachment 2 has been updated for the first time in many years, since it was originally adopted in 1990. Major changes are summarized as Encouraging the experimentation and application of new technologies and materials for sustainable street management Reaffirming allocation of 15% of annual budget for discretionary projects, and assigning top priority for trial applications of innovative technology such as permeable pavement A general rewriting and reorganization of the Policy with no other changes in essential content Specifically, the previous policy identified that 15% of each annual program may be reserved for discretionary projects and contingencies. The new criteria provide that a first priority for this 15% allocation be toward trial or demonstration projects for new technologies. The Public Works Commission recommends that the initial use of this allocation in FY 2010 be for a trial installation of Permeable Interlocking Concrete Pavers (PICP). Attachment 4 provides an overview of this technology. With the assistance of staff, the Commission has been evaluating potential sites for PICP installations throughout the City. Although there is ample experience in other communities of the successful use of PICP in parking lots and other private development sites, the Commission agrees with staff that a test of actual traveled routes is important as the next step in expanding these environmental solutions. As such, locations with at least moderate traffic volumes are currently being evaluated. Exhibit 4 provides a status report of the evaluation of 7 potential sites. If Council were to authorize up to 15% of the proposed street budget for FY 2010, this would result in an amount up to $420,000. The Commission will then come back to Council with a final evaluation of three different candidate locations, with a recommendation of final selections in priority order. We expect to be able to do that immediately after the Council s summer recess. BACKGROUND The City Council, on June 22, 1990, adopted Resolution No. 55,384-N.S., requiring the City to adopt a Five-Year Street Plan and to update it annually in conjunction with the budget process. Resolution No. 55,384-N.S. assigned the responsibility for preparing the annual update to the Public Works Commission, in collaboration with staff. The City Council adopted such a plan and several previous yearly updates. The proposed Plan, Page 2
Update of the Street Repair Policy and Permeable Paver Trial Project CONSENT CALENDAR July 14, 2009 Exhibit 3, if adopted by Council, will be the latest such update. In this case, the new 5- Year Plan is the same as last year s since the FY 2009 paving program was suspended. The process for selecting streets for inclusion in the Plan is detailed in Exhibit 2, the Street Repair Policy. The Policy is based on recommendations from the City s Pavement Management System for the most cost-effective repair schedule. Preliminary coordination with other City Capital Improvement Programs and outside utility companies is also performed. This is the first time that the policy itself has been updated since 1990. In keeping with Resolution No. 55,384-N.S., the Public Works Commission adopted the Street Repair Policy at its March 5, 2009 meeting. Subsequently, staff presented the 5- Year Plan update for review and adoption at the Commission s May 7, 2009 meeting. In each case, the Commission voted (9-0-0) to recommend that the City Council adopt the Policy and Plan updates. RATIONALE FOR RECOMMENDATION With severely limited funding and resources, it is important for the City to have a systematic plan for pavement rehabilitation that takes into account budget constraints, coordination with other programs and projects, and the impacts/effects of bus and bicycle routes. Additionally, in the era of extreme climate change, it is essential to change many approaches to enhance our environmental protection practices. One important approach to improving water quality and reducing pollutants and environmental risks is the application of pervious and permeable paving materials. One of the most promising and advanced techniques is the use of PICP as described in Attachment 4. ALTERNATIVE ACTIONS CONSIDERED Other alternative permeable paving systems are being evaluated, but PICP is recommended as the first choice to move forward with timely implementation of a trial project. CITY MANAGER The City Manager has submitted a companion report on this agenda. CONTACT PERSON Jeffrey Egeberg, Secretary, Public Works Commission, 981-6400 Attachments: 1. Resolution 2. Street Repair Policy Update 3. 5-Year Street Paving Plan, FY 2010-2014 4. Report on Permeable Interlocking Concrete Pavers Page 3
RESOLUTION NO. N.S. STREET REPAIR POLICY UPDATE AND PERMEABLE PAVER TRIAL PROJECT WHEREAS, Resolution No. 55,384-N.S. authorized the Public Works Commission to work with staff to submit an annual update to the Street Repair Policy and the annual Street Paving Plan; and WHEREAS, the Street Paving Plan has been updated every year but the Street Repair Policy has not been updated for many years; and WHEREAS, although the current 5-Year paving plan has not been updated because last year s program was deferred due to economic uncertainties, it is time to update the Street Repair Policy to reflect the principles of the Climate Action Plan and new technologies and concepts that are environmentally sustainable, economically efficient, and effective in the long term. NOW THEREFORE, BE IT RESOLVED by the Council of the City of Berkeley that the Street Repair Policy update dated March 2009 is hereby adopted, together with its attached 5-Year Street Paving Plan for 2010 2014. BE IT FURTHER RESOLVED that the Council of the City of Berkeley endorses the concept of a trial installation project of permeable paving materials, to be paid for with an allocation of up to 15% of the FY 2010 street paving budget, and hereby authorizes the City Manager to work with the Public Works Commission to come back to Council with a final evaluation of three different candidate locations, with a recommendation of final selections in priority order. Page 4
ATTACHMENT 2 CITY OF BERKELEY STREET REHABILITATION AND REPAIR POLICY Updated March 2009 A. STREET REHABILITATION POLICY Section 1. General Policy. It is the policy of the City of Berkeley that there shall be a 5-year Street Rehabilitation Plan for the entire City to be adopted by the City Council. The primary purpose of the street rehabilitation program is to maintain a safe surface conveyance system in the public right-of-way for vehicles, bicycles, transit and pedestrians. The right-of-way also provides ancillary functions of a water conveyance system and location of public utilities. The City shall strive to identify and implement integrated solutions that address the multiple demands on the street infrastructure that are designed for safety, environmentally sustainable and economically efficient over the long run. The Plan shall make use of all available funding and set priorities for rehabilitation of streets in accordance with their use, as follows: Arterials. Collectors. Residentials. (Within the collectors and residential street categories, bus and bicycle routes shall be given first consideration.) To the extent practicable, these priorities shall be consistent with: 1) the City s General Plan policy of encouraging use of forms of transportation other than automobiles, 2) the Regional Water Quality Control Board (RWQCB) goals regarding water quality, flooding potential and runoff control, and 3) the City s Measure G goal of an 80% reduction of greenhouse gas emissions by 2050. Page 5
Section 2. Assumptions. 1) Emergency and interim work for trench and pothole repair will be done and funded outside this program. 2) Available funds for street rehabilitation include Gas Tax, Measure B Sales Tax, and other federal, state, and local funds appropriated by the City Council for this purpose during the annual budget process. 3) Additional sources of funding other than those above will be needed to ensure acceptable levels of effort in street rehabilitation. Section 3. Funding. Federal and State transportation and other similar funds shall be used for repair of arterials. When all eligible work on arterials has been completed in a certain year, these fund sources may be applied to collectors. All Berkeley's Measure B Sales Tax funds allocated for local streets and roads, all new gas tax subventions, as much of the current gas tax subventions as available and other similar funds shall be used for street rehabilitation as follows: 10% for Arterial. 50% for Collectors. 25% for Residentials. 15% for Discretionary and Demonstration Projects The fees assessed to mitigate for excessive deterioration on and wear and tear of streets resulting from construction activities, public or private, shall be used for street rehabilitation. To provide for maximizing the use of the limited funds available, the Program may provide for paving publicly owned unimproved streets in areas other than those zoned S1 (industrial and manufacturing) if at least 75% of the cost is borne by the adjacent property owners. Section 4. Specific Policy. The Street Rehabilitation Program shall be based on the following criteria, listed in order of priority: 1) Street rehabilitation shall be coordinated with utility, sewer, water contamination runoff issues, and other underground activities to minimize the cost and maximize the effectiveness of rehabilitation and improve the environment. Page 6
2) Long term cost effectiveness, long term street pavement durability and aesthetics are important for priority setting and repair methodology selection. 3) In order to benefit the greatest number of residents, heavy street use (as indicated by traffic counts and bus routes designated in AC Transit's Comprehensive Service Plan) shall be given great consideration. 4) Demonstration and test projects for new technologies should be located in high visibility and heavily used areas. See attached document on background and recommendations for the trial permeable paver sites. 5) Rehabilitation of an entire street, rather than one block at a time, shall be scheduled as much as possible. 6) First hand assessment of streets, as well as computer based analysis, shall be a basis for street rehabilitation program development. Section 5. Program and Policy Development and Update. The 5-year Street Rehabilitation Program shall be adopted by the City Council and the 5-year planning process shall be adopted as a City policy as follows: 1) Each year, the 5-year program shall be reviewed and updated formally by the City Council, with the advice of the Public Works Commission. 2) On an annual basis coinciding with budget preparation, the Street Rehabilitation Policy shall be reviewed and updated formally by the City Council, with advice of the Public Works Commission. 3) Both the 5-Year Program and the Street Rehabilitation Policy shall be reviewed and updated annually to ensure that the revolving 5-Year Street Plan is consistent with the policy stated herein and for consistency with General Plan and Area Plan policies. B. UTILITY TRENCH AND POTHOLE REPAIR POLICY Section 1. General Policy It is the policy of the City of Berkeley that there shall be an annual Utility Trench and Pothole Repair Program for the most heavily used streets and in the priority order, as follows: 1. Arterials. 2. Collectors. 3. Residentials with bus routes. Page 7
Additionally, the other residential streets shall be repaired on an area-by-area basis at least every five (5) years. The program shall be reviewed and updated annually to ensure adherence to the City policy. Section 2. Assumptions. a. Emergency work for trench and pothole repair will be done as a part of this program. b. Utility company created trenches will be repaired by the respective utility company, and no City resources will be used for these purposes. Section 3. Funding. a. Gas Tax subventions and General Funds of the City shall be used for pothole repair. b. Sanitary sewer funds shall be used for City created sewer trench repair. Section 4. Specific Policy. In addition to applicable policy under Street Rehabilitation Policy, the Utility Trench and Pothole Repair Program shall be based on the following criteria: a. A trench or a pothole is defined as any pavement surface irregularities with a change of elevation (plus or minus) of more than one (1) inch in twelve (12). b. All on-going trench and pothole repair shall use the permanent repair technique, i.e., prepare the trench or pothole into a rectangular shape, fill with hot asphalt mix, and roll to match the grade adjacent to it. Page 8